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achieve actually agency altruistic amount of government analysis attempts behavior breadth broader budget bureau members bureaucrat characteristics Compendium Conservers constituency cost of attaining cumulative decisionmaking decisions deep-level define Department desire develop distort economic employment Estate Research Corporation evaluated example expensive extensive rules external environment formulate policies Full-time given goals Hence hierarchy hypotheses idea ideologies implies important income indoctrination inertia inputs interdependencies interpreted as reflecting irrational large organization larger values less loyal loyalty major means that bureaus Mixed-motive officials motivated narrow operate organizational outputs particular perfectly informed perform person Personnel political predictability prestige produce promotion RAND Corpora rational response Real Estate Research resemble role sacred policies seek power seek to attain seek to maximize selective recruit social agents social functions society specific structure subordinates superiors tend term territorial battles theorists theory is based tion top-level official uncertainty University views expressed zealots